Chapter 6 Planning For Mobilization And Deployment

[Pages:30]How the Army Runs

Chapter 6

Planning For Mobilization And Deployment

"We will develop the capability to put combat force anywhere in the world in 96 hours after liftoff-in brigade combat teams for both stability and support operations and for war fighting. We will build that capability into a momentum that generates a war fighting division on the ground in 120 hours and five divisions in 30 days."

Deployment Aspect of The Army Vision

Section I Introduction

6?1. Chapter content The deployment aspect of The Army Vision statement forcefully expresses today's Army deployability requirements. Our Army is evaluating its ability to rapidly deploy decisive force throughout the world. In view of today's complex global environment, the Army must remain prepared, trained and ready to deploy operationally, and to expand rapidly and if necessary, mobilize to meet its regional and territorial responsibilities. The Army force structure must be designed to allow force projection with maximum combat power and support units to sustain that power. The active Army and reserve components must provide both capabilities without the lengthy preparation periods that have been characteristic of the past. The need for deploying a substantial number of reserve component units overseas in the initial stages of a conflict underscores the importance placed on the Army force structure. The deterrent value of mobilization resides not only in the active Army and reserve components, but also in the preparedness to convert civilian manpower and industrial production rapidly into military power, individual replacements, and supplies. The capability of the United States to expand the active force rapidly and efficiently through mobilization is essential in deterring potential enemies. Such a capability assures our allies of U.S. resolve. Fundamental to achieving such a capability is the coordination of mobilization planning with the planned deployments for war that require mobilization.

6?2. Chapter organization This chapter covers mobilization and deployment planning systems. Although the focus is on joint planning systems, the participation of the Army in these systems is explained in some detail. Also discussed are the DOD objectives for improving industrial preparedness in the U.S. and the Army industrial preparedness program. The discussion of mobilization and deployment is presented in six sections:

? Planning System Description, Deliberate Planning, and Crisis Action Planning. ? Single-Crisis and Multiple-Crisis Procedures. ? Army Mobilization. ? Mobilization Management. ? Industrial Preparedness. ? Summary and References.

Section II Planning system description, deliberate planning, and crisis action planning

6?3. The planning system Joint operational planning encompasses planning for the full range of activities required for conducting joint operations and includes mobilization, deployment, and employment planning. Joint operational planning is conducted within the framework of the JSPS (discussed in chapter 4) and the Joint Operation Planning and Execution System (JOPES). These systems are related to each other and to the DOD PPBS (discussed in chapter 9). Army operational planning to implement joint operational planning tasks is conducted within the framework of the AMOPES. Other service systems, similar to AMOPES, include the Navy Capabilities and Mobilization Plan (NCMP), the Marine Corps Capabilities Plan (MCP) and Marine Corps Mobilization Management Plan (MPLAN), the Air Force War and Mobilization Plan (WMP), the Coast Guard Capabilities Plan (CG CAP) and Coast Guard Logistic Support and Capabilities Plan (CG LSCP).

a. JSPS. The JSPS is a flexible and interactive process, and is the primary formal means by which the CJCS, in coordination with the other members of the JCS and Combatant Commanders, carries out statutory responsibilities and discharges strategic planning responsibilities. The JSPS is the mechanism for translating national security policy, resource planning guidance, and Combatant Commander's requirements into strategic guidance, force structuring objectives, and operations planning guidance (Figure 6?1). The link with JOPES is through the JSCP, which provides short-term operational planning guidance to the military Services and the Combatant Commands.

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Figure 6?1. Joint strategic planning system

b. Joint Strategic Capabilities Plan (JSCP). The JSCP, as the link to JOPES, provides guidance to the Combatant Commanders and the chiefs of the Services to accomplish tasks and missions utilizing the current capabilities. It also apportions resources to Combatant Commanders, based on military capabilities resulting from completed program and budget actions. Additionally, the JSCP provides a solid framework for capabilities-based military advice provided to the President and the SecDef.

c. JOPES. JOPES provides a single, interoperable planning and execution process, using similar policies and procedures needed during Major Combat Operations (MCO) and in Small Scale Contingencies (SSC). It also provides for orderly and coordinated problem solving and decision-making supported by modern command, control, communications, computer and intelligence (C4I) systems. Thus, it is the joint command and control system for operation planning and execution covering the full spectrum of potential threats identified through the national security planning process. JOPES provides the means to respond to emerging crisis situations or transition to war through rapid, coordinated planning and execution. It also addresses mobilization, deployment, employment, and sustainment mission areas. The design is to support commanders and planners at national, theater, and supporting levels. The goals of JOPES are to--

(1) Support the development of OPLANs, CONPLANs, functional plans, campaign plans, and the development of operation orders (OPORD) within time-constrained crisis situations.

(2) Permit theater commanders to start, stop, or redirect military operations effectively and rapidly. (3) Support peacetime, crisis, and wartime planning and execution. (4) Integrate mobilization, deployment, employment, and sustainment activities. (5) Standardize policies and procedures that will be similar, in peacetime (including exercises) and crisis situations. (6) Support the rapid evaluation of military options and development of courses of action in single or multi-theater scenarios (for example two major combat operations (MCOs). (7) Exploit IT and communications technology advances. Specifically, utilization of the capabilities of the Global Command and Control System (GCCS) and communications assets such as the Defense Data Network (DDN). (8) Expedite the development of military estimates of situations. (9) Ensure the dissemination and presentation of timely, accurate, and properly aggregated information. (10) Allow planners to identify resource shortfalls (personnel, transportation, materiel, forces, medical, and civil engineering services). (11) Secure information from unauthorized access, data manipulation, and data retrieval. System hardware must be tempest (an unclassified term referring to technical investigations for compromising emanations from electrically operated information processing equipment) qualified and must be security certifiable for top secret sensitive compartmented information (SCI).

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d. Systems relationship. JOPES is the principal system for translating and implementing policy decisions of the National Security Council (NSC) System (NSCS) and the JSPS into plans and orders for operations in support of national security policy. It also provides a means of identifying risks in executing currently assigned missions employing currently available resources. AMOPES is the Army's mobilization interface with JOPES. It is applicable to Army components of unified commands, the MACOMs, and other supporting commands and agencies.

e. JOPES overview. JOPES is the integrated joint conventional command and control system used to support all military operation monitoring, planning, and execution (including theater-level nuclear and chemical plans) activities. JOPES incorporates policies, procedures, personnel, and facilities by interfacing with IT systems, reporting systems, and the underlying GCCS. JOPES provides IT support to senior-level decision makers and their staffs with enhanced capabilities to plan and conduct joint / combined military operations. JOPES procedures and IT systems are the mechanisms for submitting movement requirements to the USTRANSCOM.

f. Joint Planning And Execution Community(JPEC). JOPES provides support to and is used by decision makers and their staffs at all levels of the national structure for joint planning and execution. This structure is defined as the President, the SecDef, and the JPEC. Membership includes, but is not limited to the following:

(1) National level.

? CJCS. ? Service Chiefs. ? Joint Staff. ? Services.

(2) Theater level. Supported commands (including Service component commands, sub-unified commands, and joint task forces (JTF)).

(3) Supporting organizational level.

? Supporting commands (including Service component commands and supporting COCOM Commands). ? Defense agencies. ? Non-DOD departments and agencies. ? Allied commands and agencies.

g. JOPES planning and execution methodology. JOPES supports the joint planning and execution process used during peacetime operations, exercises, Military Operations Other Than War (OOTW), and war. JOPES procedures provide for various levels of decision-making in deliberate and crisis action planning environments. The five operational functions of JOPES (Figure 6?2) govern both deliberate and crisis action planning processes. Together with the two JOPES supporting functions (simulation and analysis and monitoring), they form the JOPES methodology.

Figure 6?2. Joint operations planning and execution system (JOPES)

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h. JOPES procedural principles. (1) Single set of IT procedures. JOPES embodies a single set of IT procedures that, combined with administrative policies and procedures, govern all aspects of conventional military operation planning and execution (including theater-level nuclear and chemical plans). This single networked system ensures that all users of joint military planning and execution use the same vocabulary, procedures, and joint IT support, thus facilitating the transition from training to planning, then to effective military operations. (2) Use of existing or programmed capabilities and resources. JOPES planning is capabilities based. Military planners use the forces and resources specified for regional or global planning in the JSCP and CJCS orders, Service capabilities documents, and approved OPLANs or orders. Using the forces and resources apportioned for planning, the Combatant Commanders select those forces they intend to employ within their plans to complete the assigned tasks. (3) Shortfall identification and risk analysis. JOPES contains specific procedures for the supported command to identify shortfalls between the planned requirement and the identified capability at various points in the planning process. The supported command then attempts to resolve shortfalls, conducts risk analysis if the shortfalls are not resolved, and redefines the Combatant Commander's Strategic Concept if the resultant risk is too great. (4) Plans maintenance. Completed and approved plans will be maintained and updated as changes occur. A new plan is required only when the threat, taskings, forces assigned, resources available, or concept of operations change to the extent the supported Combatant Commander and the CJCS deem it necessary to develop a new plan. Otherwise, commanders and their staffs concentrate on keeping existing plans and orders up to date and executable. Currently, the Sec of Def requires Combatant Commanders to brief their major OPLANs and CONPLANs every six months during the planning revision process. i. JOPES policies, procedures, and guidance. Procedures, guidance, and descriptions of IT system support and reporting structure necessary to conduct joint operation planning and execution are contained in four Chairman of the Joint Chiefs of Staff memorandums (CJCSM): (1) CJCSM 3122. 01, Joint Operation and Planning and Execution System (JOPES) Volume I (Planning Policies and Procedures), provides policy, guidance, and procedures for the development, coordination, dissemination, review, approval, and implementation of joint OPLANs and OPORDs. (2) CJCSM 3122.03A, Joint Operation Planning and Execution System Volume II (Planning Formats and Guidance), prescribes standard formats and minimum content for OPLANs, concept summaries, annexes, appendixes, tabs, and exhibits. It is functionally oriented and provides directional, procedural, and planning guidance keyed to certain plan annexes. (3) CJCSM 3122.02B, Crisis Action Time-Phased Force and Deployment Data Development and Deployment Execution , Volume III prescribes standard formats and minimum content for crisis action planning (CAP) procedures, orders, letters, reports, and the CAP checklists. (4) CJCSM 3150.16bvi, Joint Operation Planning and Execution System Reporting Structure (JOPESREP), Vol. I prescribes reporting procedures, reporting channels and timelines necessary to conduct joint operation planning. j. JOPES functions. JOPES consists of seven interrelated functions that provide a framework for joint military planning and execution. Figure 6?2 depicts the five operational functions and two supporting functions. The five operational functions are sequentially related, proceeding in a logical order from identification of a threat, to determination of strategy that counters the threat, to course of action development, to detailed planning, and finally, to actual implementation of military operations. The supporting functions, on the other hand, relate to all of the operational functions and have an impact on each JOPES operational function. Figure 6?3 displays the operational functions and identifies the major inputs and outputs of each operational function.

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Figure 6?3. Functional process major inputs and outputs

(1) Threat identification and assessment. This function addresses procedures for continuous monitoring of the international political and military environment so threats to national security can be detected and analyzed, alerting decision makers, and determining and defining threat capabilities and intentions. Through detailed planning and the development of courses of action at the operational level and monitoring and adjusting operations during execution, this function provides information for strategic planning and resource allocation at the national level. All organizational levels are supported by this function during crisis action planning and execution.

(2) Strategy determination. Using this function, the President, SecDef, CJCS, and JS formulate suitable and feasible military direction to counter the threats and to develop courses of action. It involves formulating political-military assessments, developing and evaluating military strategy and clearly defining political and military objectives or end state, apportioning forces and other resources, formulating concepts and military options, and developing planning guidance leading to the preparation of courses of action, OPLANs, and OPORDs. This process begins with an analysis of existing strategy guidance in light of the intelligence estimate and ends with issuance of either the JSCP in peacetime or a CJCS warning or planning order during crisis action planning situations.

(3) Course of action development. In course of action development during peacetime, the supported command develops the Combatant Commander's Strategic Concept based on JS and Service planning guidance and resource apportionment provided in the JSCP and Service documents. In crisis situations, the supported command develops courses of action based on CJCS planning guidance and resource allocation from approved OPLANs and CJCS warning or alert orders. Using this JOPES function coupled with the simulation and analysis JOPES support function, force sustainment and transportation feasibility are analyzed. The Services, through Service component commands and supporting commands provide supportability estimates of the Combatant Commanders Strategic Concept or courses of action to the supported command. Products from course of action development include the Combatant Commanders Strategic Concept; CJCS-approved Concept of Operations; the Commander's Estimate, including courses of action; supportability estimates; and, time permitting, an integrated time-phased database of notional combat, combat support (CS), and combat service support (CSS) force requirements with an estimate of required sustainment.

(4) Detailed planning. This function is used in developing a CONPLAN, OPLAN, or OPORD with supporting annexes and in determining preliminary movement feasibility. This function provides detailed force lists and required sustainment. This includes a fully integrated schedule of deployment, employment and mobilization activities, determination of support requirements, including medical, civil engineering, air refueling, host nation support and transportation needs, all based on the CJCS-approved concept of operations or course of action. Detailed planning begins with

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CJCS guidance in the form of an approval for further planning in a peacetime environment and a CJCS Alert or Planning Order in a crisis action-planning situation and ends with a CJCS-approved OPLAN or President/SecDefapproved OPORD.

(5) Implementation. This function provides decision makers the tools to monitor, analyze, and control events during the conduct of military operations. It encompasses the execution of military operations and provides procedures to issue OPORDs; conduct mobilization, deployment, employment, and sustainment activities; and adjust operations where required. The ability to monitor and compare actual events with scheduled events is crucial to assessing mission accomplishment; controlling, directing, re-planning, redirecting, or terminating operations; and conducting redeployment. Planning is a cyclic process that continues throughout implementation. Implementation begins with the CJCS execute order and usually ends with some type of re-planning effort such as redeployment or redirection of operations.

(6) Supporting functions. Two supporting functions identified in Figure 6?2, monitoring and simulation and analysis, complement the operational functions to complete the conceptual framework of JOPES.

(a) Monitoring. This supporting function supports each of the other JOPES functions by obtaining current, accurate information concerning the status of friendly, enemy, and neutral forces and resources to accomplish mission tasks. Examples of information processed are objective accomplishment; consumption data; and the status of deployment, procurement, mobilization, forces, and facilities.

(b) Simulation and analysis. This supporting function offers various automated techniques that enhance each of the other JOPES functions. Examples of simulation and analysis applications, when feasible, are force-on-force assessments (suitability); generation of force requirements; comparison of requirements to capabilities, such as consumption data; closure profiles (feasibility); and generation of mobilization and sustainment requirements based on need.

k. JOPES planning process. Joint operation planning and execution is a continuous, iterative process. It begins in response to perceived and identified threats to U.S. security interests; continues through military flexible deterrent option (FDO) and course of action selection, OPLAN, and operation order development and implementation; and ends when the requirement for the plan is canceled, the operation is terminated, or the crisis is satisfactorily resolved. Figure 6?4 shows the JOPES operational functions aligned with the deliberate and crisis action planning process.

Figure 6?4. JOPES relational functions

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6?4. Deliberate planning a. Applicability of JOPES. This section describes the applicability of JOPES to deliberate planning, describes the

deliberate planning process for OPLANs, outlines responsibilities and recommended time requirements for the planning cycle, and provides guidance for resolving conflicts. JOPES applies to all OPLANs except for the Single Integrated Operation Plan (SIOP) that is prepared with inputs from the Combatant Commanders in response to CJCS requirements. OPLANs are prepared in complete format or in CONPLAN format. Theater engagement plans and campaign plans are also a vital portion of the deliberate planning process. All are described below:

(1) Operation plans (OPLAN). An OPLAN is a complete and detailed plan for the conduct of joint military operations. Prepared by the Combatant Commander, it includes a full description of the concept of operations and all annexes applicable to the plan. It identifies the specific forces, functional support, resources required to execute the plan and provides closure estimates for their movement into the theater. An OPLAN can be quickly developed into an OPORD. OPLANs are normally prepared when the contingency is critical to national security and requires detailed prior planning or when detailed planning will contribute to deterrence by demonstrating readiness through planning. In some cases detailed planning is required to support alliance or combined planning. OPLANs also facilitate the transition to war and, through the development of supporting plans, establish the feasibility of the plan's concept of operations. OPLANs usually discuss the Combatant Commander's desired end state and include as a phase or sequel the transition to post hostility operations.

(2) Concept plans (CONPLANs). A CONPLAN is an OPLAN with or without TPFDD in an abbreviated format that would require considerable expansion or alteration to convert it into an OPLAN or OPORD. A CONPLAN contains the Combatant Commander's strategic concept and those annexes and appendixes deemed necessary by the Combatant Commander to complete planning. CONPLANs with TPFDD require more detailed planning for the phased deployment of forces. Supporting plans are prepared as tasked by the supported Combatant Commander in support of their deliberate plans. As a rule, detailed support requirements are not calculated and TPFDD files are not prepared.

(3) Functional plans. The Combatant Commanders develop plans involving the conduct of MOOTW or non-hostile environment. Examples include plans for disaster relief, peacekeeping, nation assistance, logistics, communications, surveillance, and protection of U.S. citizens, nuclear weapon recovery and evacuation, and continuity of operations. Requirements for these plans should be satisfied by command publications. An example is the United States USAREUR Reconstitution Plan. Unless specifically directed, no requirement exists to submit these plans to the JS for review and CJCS approval, but information copies will be submitted to the JS, J?7, for internal JS distribution. Although the planning procedures and formats prescribed in JOPES, Volume II, are not mandatory for such plans, they may be useful.

b. Campaign planning. Campaign planning is the process whereby Combatant Commanders and subordinate JTF commanders translate national and theater strategy into operational concepts through the development of campaign plans. Campaign planning may begin prior to or during deliberate planning when the actual threat, national guidance and resources become evident, but is not completed until the Combatant Commander and CJCS provide recommended courses of action to the President and SecDef and they select the course of action during crisis action planning. Campaign planning is normally conducted when contemplated military operations exceed the scope of a single major joint operation.

c. Deliberate planning process for OPLANs. (1) Conducted primarily during peacetime, deliberate planning is designed as a cyclic process that involves the entire JPEC in a coordinated effort to develop and refine plans to be used in wartime. In its basic form, deliberate planning has five formal phases (Figure 6?4). These phases produce a family of plans (the supported commander's plan, supporting plans, and plans designed for concurrent execution). (2) Forces and sustainment requirements are developed by the supported commander, tasked by OSD and resourced by the Services, supporting commanders, and Defense agencies. The resourced forces and sustainment requirements requiring common-user lift are time-phased by the supported Combatant Command and scheduled for movement by USTRANSCOM. The supported commander prepares the various annexes that provide detailed guidance to supported command components and subordinate commanders. The supported commander is authorized to task supporting commands and DOD agencies to participate in the planning process to include submitting supporting plans, as required. The supported command may also request JS assistance in gaining planning support from agencies outside the DOD. Supporting commands and agencies should be informed of support requirements as early as possible in the planning process. OPLANs must be thoroughly coordinated. The format and content for an OPLAN are prescribed in CJCSM 3122.03A, JOPES, Volume II. d. Deliberate planning process for CONPLANs. The planning process for CONPLANs is the same as for OPLANs, except that the CONPLAN process normally omits the resource detail developed in the Plan Development Phase. The format and content for a CONPLAN are prescribed in CJSCM 3122.03A, JOPES, Volume II. e. Planning cycle responsibilities and time requirements. JOPES uses a planning cycle that begins when the JS, in

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the name of the CJCS, publishes the JSCP and planning schedules and terminates at the end of the period to which the JSCP applies. The JS also reviews OPLANs, CONPLANs, and FUNCPLANs prepared by the Combatant Commands in accordance with provisions of Enclosures C and D, CJCSM 3122.03A. The JSCP provides guidance, assigns tasks, apportions major combat forces, and specifies items of materiel and lift assets available for planning. Following publication of the JSCP, the JS, in coordination with the Combatant Commands, will produce an initial planning schedule for the development of the OPLANs and concept summaries tasked in the JSCP. The initial planning schedule will be disseminated by message and will set forth established OPLAN submission and, if required, plan refinement conference dates. All Combatant Commanders plans will be forwarded to the JS for CJCS and SecDef review / approval which includes all Tier 1 (Homeland Defense) and Tier 2 (SDTE plans). CJCS and SecDef review and approval is also required for selected Tier 3 (CONPLANs, Consequence Mgt, WOT plans). Tier 4 FUNCPLANs (PKO, NEO, etc) are reviewed and approved at the Combatant Command level. Upon receipt and after analysis of JSCP taskings and planning guidance, supported commanders develop new OPLANs, request permission to cancel approved plans no longer meeting JSCP requirements, or revise existing plans to conform to current JSCP and CJCS taskings. Canceled plans must be retained on file for a two-year period. Upon expiration of the two-year period, the record copy of the OPLAN (less TPFDD file) or CONPLAN specified as the permanent record will be retired to the applicable Federal records center. Records so retired will be marked with appropriate instructions to ensure their protection against improper release in accordance with CJCSI 5714.01, Release Procedures for Joint Staff and Joint Papers and Information.If the requirement for an existing OPLAN is not changed by the JSCP tasking, the supported commander should review the plan to determine whether it is still sufficient and can still pass the tests of acceptability, feasibility, adequacy, and consistency with joint doctrine. If the plan still sufficiently passes these tests, the tasking may be satisfied by a message to the CJCS stating that the plan has been reviewed, analyzed, and can still meet the JSCP tasking. If the CJCS review results in concurrence, a CJCS message or memorandum will approve the plan for the appropriate JSCP period.

f. Conflicting guidance. Combatant Commanders who are also commanders of combined commands or who conduct coordinated planning on a bilateral or combined basis will report to the CJCS any conflicts between the guidance contained in JOPES and directives received from international authorities or provisions of any plan established by international agreement. The Chairman, U.S. Section, Canada-United States Military Cooperation Committee, will report to the CJCS any conflicts between plans developed by the committee and the guidance in JOPES. In all cases, the provisions in JOPES will have precedence pending resolution of the conflict.

g. Deliberate planning procedures. Procedures for deliberate planning are designed to assist the planning community in the timely, efficient development of OPLANs and to provide a consistent framework for the planning process. The deliberate planning process phases and procedures are as shown in Figure 6?5 and 6?6. A detailed discussion of the requirements of each phase follows:

Figure 6?5. JOPES deliberate planning

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